Redacted_FAR8.4_LSJ_AMaS.pdf

UNCLASSIFIED

LIMITED-SOURCES JUSTIFICATION

PURSUANT TO FAR 8.405-6(c) FOR ORDERS OR BPAS WITH AN

ESTIMATED VALUE EXCEEDING THE SIMPLIFIED ACQUISITION THRESHOLD

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CONTROL NUMBER: JA-FY25-033

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THIS ACQUISITION IS CONDUCTED UNDER THE AUTHORITY OF THE MULTIPLE-AWARD SCHEDULE PROGRAM

(41 U.S.C. 152(3), COMPETITIVE PROCEDURES, AND 40 U.S.C. 501, SERVICES FOR EXECUTIVE AGENCIES).

1. IDENTIFICATION OF THE AGENCY AND THE CONTRACTING ACTIVITY.

National Geospatial-Intelligence Agency / Office of Contract Services

2. NATURE AND/OR DESCRIPTION OF THE ACTION BEING APPROVED.

(U) The nature of the action being approved is to increase the ceiling of the Agile Management and Support (AMaS) Time and Materials (T&M) contract, GSA Number GSQTCA19D00A5, Contract Number HM047623F0062, to accommodate an increase in the capacity of the contract. The increase is required to scale the level of support commensurate with the growth in development activity within development efforts under the Program Executive Office Advanced Analytics (PEO AA), Data and Digital Innovation directorate, and Program Executive Office GEOINT Ground (PEO GG). On behalf of these programs, the Analysis Services Integrated Program Office (IPA) requests an increase to the contract ceiling from $42M, by $23.1M, to a new ceiling of $65.1M.

(U) In accordance with FAR 8.405-6(a)(1)(i)(C), the required increase in scope to the AMaS contract represents a logical follow-on to the original order in the interest of economy and efficiency. This action will not include an extension to the overall contract period, ending 31 May 2028.

3. ESTIMATED VALUE AND PERIOD OF PERFORMANCE OR PROJECTED DELIVERY SCHEDULE.

a. ESTIMATED VALUE ($M): (U) The proposed contract ceiling increase is $23.1M, resulting in a new ceiling of $65.1M. The basis of this determination is the anticipated costs for greater team capacity for the remainder of the AMaS period of performance. Program analysis considered potential needs across development programs within PEO AA, DDI, and PEO GG, commensurate with known growth in program budgets that will demand surges in support at

b. PERIOD OF PERFORMANCE, INCLUDING ALL OPTION PERIODS, OR PROJECTED DELIVERY SCHEDULE:

The AMaS contract was awarded on 1 June 2023 as a T&M contract with a base year, four option years through 31 May 2028. This action will not include an extension to the overall contract period, ending 31 May 2028.

4. IDENTIFICATION OF THE AUTHORITY AND CIRCUMSTANCE THAT JUSTIFIES LIMITING THE SOURCE.

FAR 8.405-6(a)(1)(i)(C) -- In the interest of economy and efficiency, the new work is a logical follow-on to an original Federal Supply Schedule order that was not previously issued under limited-sources procedures.

FAR 8.4 Limited-Sources Justification exceeding SAT

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5. DESCRIPTION OF THE SUPPLIES OR SERVICES REQUIRED TO MEET THE AGENCY S NEEDS.

(U) AMaS is a General Services Administration (GSA) Federal Supply Schedule (FSS) order, awarded competitively on 1 June 2023. The AMaS contract was awarded as a T&M order with a base year, four option years through 31 May 2028, and an approved ceiling of $42M. The AMaS award fulfilled a new requirement for IPA in support of the Analytic Services Production Environment for the NSG (ASPEN) major system acquisition (MSA), also approved in May of 2023 in its Milestone B to initiate substantial development activities in pursuit of analytic workflow modernization initiatives for the NGA enterprise.

(U) AMaS supports IPA in the technical management of scaled agile activities across five sub-projects, eleven required performance metrics (RPMs), and more than a dozen significant development contracts, all of which requires integrated, standardized tracking and reporting for the successful delivery against the statutorily required Program Management Plan (PMP) milestones of the ASPEN program. In the two years since inception, the AMaS effort has standardized and cataloged thousands of agile software requirements in complete integration between developer-contractor agile backlogs and IPA management activities has allowed ASPEN to deliver capabilities at a sustainable pace, identify and report capability risks, delays, efficiencies, and completions, and generally elevate program maturity across all domain of program management.

(U) The success of the AMaS contract in providing a model in agile management for large software development portfolios has revealed an opportunity to extend such program rigor across programs within the nascent PEO AA, where ASPEN and Maven will be expected to incrementally leverage greater common practices and services between the programs. Additionally, as of May 2025, IPA is assuming elements of software architecture germane to Maven systems. Opportunities for efficiencies at the architectural level strongly suggest a sharing of management practices at the programmatic level will duly deliver benefits to capability delivery for ASPEN and Maven alike.

(U) The ceiling increase to AMaS will be used to add contract capacity for additional Agile Management Teams (AMT), Release Train Management (RTM) teams, and new Strategic Facilitation and Communication (SFC) teams. While AMTs and RTMs remain unchanged as prescribed PWS functions, the SFC function will be explicitly added to account for unifying services that tie project level agile management activities to Program Manager and Director level communications needs. These include such tasks as agile event planning and facilitation, strategy development and conveyance, reporting and visualization, and development of executive/external briefing materials. Additionally, extending the application of these services beyond IPA to collaborator development programs such as Maven within the nascent PEO AA, as well as programs within DDI and PEO GG, will improve the management rigor and level of integration between interdependent programs based on well-established processes proven on AMaS.

6. DEMONSTRATION OF THE CONTRACTOR S UNIQUE QUALIFICATIONS TO PROVIDE THE REQUIRED

SUPPLY OR SERVICE THAT REQUIRES USE OF THE AUTHORITY CITED.

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(U) As stated in the authority, in the interest of economy and efficiency, the new work is a logical follow-on to the original FSS order provided that the original order was placed in accordance with the applicable FSS ordering procedures. AMaS was awarded competitively in accordance with FAR Subpart

8.4 procedures.

(U) The increasing demand for more agile management capacity is driven by the bow wave of development requirements in the ASPEN and Maven programs. The combined budgets of these programs in FY26 will be more than double that of FY24, in accordance with their planned program growth to scale both the range of analytic applications under development and extend their use to ever greater analyst and combatant user bases. The dramatically growing backlog of both capability development work, as well as features strictly related to integration, interdependencies, and risk mitigations can only be made manageable through comprehensive orchestration via a single empowered agile management effort.

(U) AMaS has been tremendously successful in the first two years of the contract in instituting practical agile management controls for the integrated pursuit of highly varied development objectives. Their highly skilled use of available enterprise tools such as Jira, Confluence, and Tableau has proven

-first environment, and easily report program progress to NGA, ODNI, and USD (A&S) oversight principals. This was a monumental task, deftly executed thro and tens of thousands of data elements within IPA Jira projects, and subsequent connecting of that data to each other to achieve a single consolidated ability to view and measure total agile metrics.

Achievements to deliver this level of agile maturity include:

Migration of 4,000 Jira issues from a single manually-entered project into 19 program-level Jira projects containing 20,000 issues;

Implementation of NGA Enterprise and ASPEN-level Systems Engineering Plans to refactor issue hierarchy;

Establishing automated ingest of vendor level data into program-level Jira projects, reducing this data cycle from 3 days to 2 hours; and

Creation of multiple custom dashboards in Tableau to monitor, control, and report MSA progress.

(U) Awarding this work to another source would introduce significant schedule delays and unacceptable risk to the NGA analyst community and the delivery of mission systems that support them. It would also introduce unacceptable risk to the satisfaction of ASPEN Program Management Plan milestones, -Initial Capabilities Document, and potentially milestones of other acquisition programs that interface with these efforts. Scaled agile development efforts of the scale present in these programs requires a large learning curve to stabilize the flow and definition of requirements, as described above.

Award to any other source at this time would set back program rigor and efficiency by at least one year.

(U//FOUO) It is also in the economic interest of the Government to award this additional work to the current vendor. The Government may also incur a duplication of costs of approximately $625,000 and an additional 2 years to instantiate a SCIF for the new vendor. The current AMaS contract was sponsored by IPA to establish a SCIF in the immediate vicinity of NGA Washington that would allow for the kind of

FAR 8.4 Limited-Sources Justification exceeding SAT, v6.0, 09/10/2024 4 | P a g e close collaboration between IPA project and product managers, development contractors, and agile facilitators. To abandon the utility of this investment through the award of the contract to a new vendor would not only sink costs, but harm programmatic collaboration across many parties.

(U) If the Government were to terminate or decline the exercise of options on AMaS and recompete the effort, it would incur a duplication of costs of approximately $1,750,000 related to dual spending on a contract transition period between two vendors that would estimate to take 90 days. Establishing one agile management team and multiple release train management teams (approximately 10,000 labor hours over a 90-day period), in addition to new strategic facilitation teams, and conduct turnover to a commensurate level of maturity such as currently attained on AMaS, would require a substantial financial and schedule investment, and set back the service-level competency of this program function to harmful degree.

(U) Based upon the aforementioned reasons, awarding these efforts to any other source would result in a substantial unrecoverable duplication of cost to the Government that is precluded through the award of a logical follow-on in the interest of economy and efficiency. Awarding these efforts to any other source would also introduce unacceptable schedule risks for acquisition customers and program stakeholders. It will also capability requirements.

7. CONTRACTING OFFICER DETERMINATION THAT THE ORDER REPRESENTS THE BEST VALUE

CONSISTENT WITH 8.404(d).

(U) The services offered on the schedule are priced at hourly rates that have been determined by GSA to be fair and reasonable. The Contracting Officer (CO) will evaluate the proposed pricing to verify proposed rates are at or below approved GSA schedule rates and that the total proposed price is fair and reasonable. The CO will confirm that the addition of work to the order represents the best value to

8. DESCRIPTION OF THE MARKET RESEARCH CONDUCTED AMONG SCHEDULE HOLDERS AND THE

RESULTS OR A STATEMENT OF THE REASON MARKET RESEARCH WAS NOT CONDUCTED.

(U) This order was awarded from a competitive solicitation which sought to obtain competition through standard FAR Subpart 8.4 acquisition practices. Extensive market research was conducted for the AMaS requirement in the 2022-2023 timeframe. The recency of that acquisition planning cycle and substantial industry interest received at that time supports the potential for future competition. The Government intends to conduct a fulsome market research and industry engagement effort as part of a complete acquisition planning cycle to achieve a competitive environment for the follow-on contract in the FY28 timeframe.

9. ANY OTHER FACTS SUPPORTING THE JUSTIFICATION.

(U) None.

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10. STATEMENT OF THE ACTIONS, IF ANY, THE AGENCY MAY TAKE TO REMOVE OR OVERCOME ANY

BARRIERS THAT LED TO THE RESTRICTED CONSIDERATION BEFORE ANY SUBSEQUENT ACQUISITION

FOR THE SUPPLIES OR SERVICES IS MADE.

(U) IPA intends to analyze the existing and emerging requirements and establish an acquisition plan to be executed as a follow-on to AMaS in FY28. During that time, the Government will undergo a vetting process to include the release of Request for Information (RFI), holding an industry day, and schedule one on one sit down discussions with vendors to discuss capabilities. The Government will also retain data rights sufficient to permit the sharing of technical data for purposes of competitive procurement.

Due to the proliferation of commercial agile software services available in the marketplace, IPA anticipates a strong competitive landscape at that time.

11. APPROVING OFFICIAL DETERMINATION OF THE CIRCUMSTANCE THAT APPLIES UNDER FAR 8.405- 6(a)(1).

I, acting as the Agency Competition Advocate, have determined that limiting sources to fewer than those required by FAR 8.405-2, pursuant to the authority of 41 U.S.C. 152(3), is justified based on the following circumstance: FAR 8.405-6(a)(1)(i)(C) -- In the interest of economy and efficiency, the new work is a logical follow-on to an original Federal Supply Schedule order that was not previously issued under limited-sources procedures.